行政争议诉前调解作为非诉解纷机制的困境与优化
The Dilemma and Optimization of Pre-Litigation Mediation of Administrative Disputes as a Non-Litigation Dispute Resolution Mechanism

诉前调解，将诉讼调解程序提前到了诉讼开始之前，是非诉讼纠纷解决机制的组成部分；行政争议诉前调解，是在当事人对行政争议提起行政诉讼、行政复议或产生行政争议时，当事人向行政争议调解中心申请调解，行政争议调解中心就该行政争议进行诉前协调。本文以行政争议诉前调解兴起的时代背景、我国立法现状与实践运行为起点，通过行政争议诉前调解的功能定位分析该制度的理论价值，探索该制度在实践运行中存在的理论争议与现实困境。目前，行政争议诉前调解在实践中存在立法规定不统一、调解协议的司法确认程序不健全、调解协议的法律效力不明确等困境。应加快完善行政争议诉前调解统一的立法规定，优化行政争议诉前调解协议的司法确认程序，明确行政争议诉前调解协议的法律效力，实质性化解行政争议在行政诉讼前。
Pre-litigation mediation, which advances the litigation mediation process to the beginning of litiga-tion, is an integral part of the non-litigation dispute resolution mechanism; the pre-litigation mediation of administrative disputes is that when the parties file administrative litigation, administrative reconsideration or administrative disputes on administrative disputes, the parties apply to the administrative dispute mediation center for mediation, and the administrative dispute mediation center coordinates the administrative dispute before litigation. Based on the background of the rise of pre-litigation mediation of administrative disputes, the current situation of legislation and practical operation in China, this paper analyzes the theoretical value of the system through the func-tional orientation of pre-litigation mediation of administrative disputes, and explores the theoretical disputes and practical difficulties existing in the practical operation of the system. At present, there are some difficulties in the practice of pre-litigation mediation of administrative disputes, such as inconsistent legislative provisions, imperfect judicial confirmation procedures of mediation agreements, and unclear legal effect of mediation agreements. We should speed up the improvement of the unified legislative provisions on the pre-litigation mediation of administrative disputes, optimize the judicial confirmation process of the pre-litigation mediation agreement of administrative disputes, clarify the legal effect of the pre-litigation mediation agreement of administrative disputes, and substantively resolve administrative disputes before administrative litigation.